Initiatives From Preschool to Third Grade...children who participate in high-quality preschool programs are 40 percent less likely to drop out of school and 50 percent less likely

SPECIAL REPORT wwwecsorgemsp|emspEdCommission

Initiatives From Preschool to Third Grade

A POLICYMAKERS GUIDE

BRUCE ATCHISON

LOUISA DIFFEY

FEB 2018

The period between preschool and third grade is a tipping point in a childrsquos journey toward lifelong learning mdash from ldquolearning to readrdquo

to ldquoreading to learnrdquo1 If children do not have proficient reading skills by third grade their ability to progress through school and meet grade-level expectations diminishes significantly While all areas of childrenrsquos learning and development are critical for school success the predictive power of a childrsquos third-grade reading proficiency on high school graduation and dropout rates is startling2 Consider

J Children who are not reading proficiently by third grade are four times less likely to graduate from high school on time

J If they live in poverty they are 13 times less likely to graduate on time

J In 2016 they comprised more than half of all students (63 percent) who did not graduate on time

Pair that with the knowledge that about 30 percent of all fourth-graders and 50 percent of African-American and Hispanic fourth-graders nationwide are reading below grade-level Over half are likely to drop out or will not graduate on time

If policymakers are to make a significant impact on the readiness of our nationrsquos future workforce interventions and strategies to address gaps in learning must begin much earlier than third grade Research demonstrates that disparities in childrenrsquos learning are evident as early as nine months of age Policymakers have the authority to make equity-focused policy decisions that not only ensure all students receive equal access to the same educational pathways but also provide them with the unique supports they need to succeed

However in most states the programs that support children on their path to academic success from birth to third grade are disconnected mdash especially for low-income children who are most at-risk for school failure mdash in part because the funding streams and governance that oversee these programs are themselves fragmented The lack of coordination between education programs that serve children until age 5 and the K-12 education system is becoming apparent to education policymakers States will need to employ strong leadership to set a vision for programs transitions governance and funding coordination to address gaps in early learning mdash setting children on a path toward third-grade success and ultimately high school graduation

Of the 25 million

students who dropped

out of high school last

year about 16 million

were firmly set on that

trajectory when they

were 8 years old

In 2016-17 30 states

increased funding for

pre-K demonstrating

overall support for

expanding access

Disparities in

childrenrsquos learning

are evident as early

as 9 months of age

and persist as children

continue through school

This primer is meant to serve as a reference for policymakers and their staffs on the most common requests that Education Commission of the States receives on vital P-3 issues Though the infrastructure needed to support a comprehensive P-3 agenda also includes elements such as longitudinal data systems professional development systems family engagement strategies leadership and equitable systems designed to promote childrenrsquos overall health and well-being the primary elements policymakers inquire about include

Preschool Access to high-quality preschool programs for 3- and 4-year-olds

Transitions Strategies to support children in their transition to kindergarten

Kindergarten through third grade Quality teachers curricula and developmentally appropriate practices

Full-day kindergarten Full-day kindergarten programs for 5-year-olds

Third-grade reading and math Innovative policies designed to identify and support children to meet third-grade reading and math goals

High-quality programs Characterized by exceptional educators and leaders who use ongoing data collection to inform instruction and practice

Aligned standards curricula and assessments Ensuring statersquos learning standards curricula and assessments are aligned to support children in P-3

Funding Coordinating funding streams that support P-3 programs to maximize dollars and reduce inefficiencies

Governance Coordinating the range of P-3 programs services agencies and entities at the state level to ensure the delivery of seamless programs and services for children and families

Workforce Recruiting preparing and supporting highly effective professionals who have the competencies needed to work in P-3

Dual-language learners Ensuring dual-language learners are prepared for school and do well once they enter public schools

Special education Leveraging early learning structures to support special education students in achieving academic and social success

Each section of this guide provides an overview of the topic a brief summary of the research rationale a status of related initiatives across the nation specific state examples questions for critical decisions and links to additional resources

PRESCHOOLIn recent years policymakers and practitioners have worked together to expand access to high-quality preschool opportunities recognizing the long-lasting impact these programs have for the youngest learners These programs are typically offered in preschools located in child care centers or school-based settings and in most states require the programs to meet state standards if they are receiving state funding

Why it mattersOnce considered a strategy to support working parents with child care needs most states now view access to high-quality preschool programs as a critical long-term economic investment in the future workforce and a precursor to school success Pre-K funding demonstrates a significant return on investment as every $1 invested in early learning has a 13 percent-per-year return3 In 2016-17 all but six states provided funds for pre-K and 30 states increased funding demonstrating overall support for expanding pre-K access Rigorous long-term evaluation studies have found that children who participate in high-quality preschool programs are 40 percent less likely to drop out of school and 50 percent less likely to be placed in special education4

Statewide initiatives Funding for preschool access and supports for quality continues to grow in most states In 2016 43 percent of 4-year-olds and 16 percent of 3-year-olds were served through a combination of public pre-K programs special education and federally and state-funded Head Start In 14 states more than 50 percent of 4-year-olds utilize publicly funded programs Additionally state funding to support pre-K has increased by $480 million or 68 percent since 2015-16 fiscal year demonstrating an ongoing focus across the states5

Questions to consider J What percentage of 3- and 4-year-olds utilize state-funded pre-K

J What is the statersquos capacity to implement preschool for all (that is are there enough qualified staff and facilities available) or could a plan for scaling up capacity be developed

J What quality standards and improvement plans are in place for state-funded programs

J What structures are in place to support pre-K teachers and providers in accessing professional development

J Does your statersquos ESSA plan support the use of Title I funding for early learning programs

Resources J Indispensable Policies and

Practices for High Quality Pre-K New America

J 50 State Review of State Pre-K Funding 2016-17 Fiscal Year Trends and Opportunities Education Commission of the States

J The State of Preschool 2016 National Institute for Early Education Research

State examples The District of Columbia aims to provide high-quality universal pre-K programs through DC Public Schools community-based organizations and charter schools by blending state money with Head Start funding In 2016 DC Public Schools served 70 percent of 3-year-olds and 81 percent of 4-year-olds6

New York served 50 percent of the statersquos 4-year-olds through its Universal Pre-Kindergarten Program in 20167 New York City has since expanded its services to 3-year-olds

Georgiarsquos Pre-K Program established in 1995 served close to 60 percent of the statersquos 4-year-olds in 2016 A longitudinal study found participation significantly improved childrenrsquos school readiness skills8

Mississippi began to fund state voluntary pre-K through the Early Learning Collaborative Act of 2013 The program meets all 10 current quality benchmarks established by the National Institute for Early Education Research and will include assessments to identify students in need of interventions

TRANSITIONSThe transition to kindergarten can be challenging as it represents a shift on many fronts from childrenrsquos early care and education setting to formal K-12 schooling Kindergarten often includes new surroundings peers rules expectations and methods of learning9

To support parents and children making a seamless transition to kindergarten some states have adopted outreach strategies and developed policies to provide

J Opportunities for teachers and incoming kindergarten students to meet over the summer at their new schools

J Home visits by the kindergarten teacher sometimes done with the pre-K teacher and orientation sessions for parents and students

J Schoolwide events for new families

Why it mattersTransitions are key to a studentrsquos academic success as they provide the opportunity for alignment across a childrsquos early learning experiences Transitions allow for data and other relevant information to be shared ensuring that any gains or revelations made in the pre-K space can be transferred to the kindergarten teacher Additionally transition processes allow for parents to share information about their children become part of their childs kindergarten experience and engage in the early elementary school experience

Statewide initiativesExamples of effective preschool-to-kindergarten transition models are most evident at local levels However 19 states plus the District of Columbia provide guidance including written transition plans family engagement teacherprovider meetings and assessment data linkages10

Questions to consider J Is there a current statewide transition model in place

J If a statewide model does not exist what lessons can be learned from innovative districts or community- or school-level transition models

J Are districts required to employ strategies for engaging families and establishing two-way communication systems between pre-K and K-3 programs (for example sharing data and assessments home visits and professional development opportunities)

J Are standards curricula and assessments aligned between pre-K and kindergarten

Resources J Connecting the Steps

State Strategies to Ease the Transition from Pre-K to Kindergarten New America

J 50-State Comparison of K-3 Quality Transitions Education Commission of the States

J Transition and Alignment Two Keys to Assuring Student Success Education Commission of the States

State examplesMaine public preschool programs must have a process in place to provide transitions to kindergarten and that process must include family engagement Targeted funds are available to support K-2 education and facilitate these transitions including family outreach

Washington passed the Washington Kindergarten Inventory of Developing Skills legislation aimed at improving the kindergarten transition process Implementation of WaKIDs consists of three components designed to help

ensure a smooth transition process family connection whole-child assessment and early learning collaboration The family connection component requires schools to invite families to individual meetings to discuss goals and expectations for the kindergarten year

West Virginia Board of Education Policy 2525 outlines criteria for approving and operating programs as part of the statersquos universal pre-K program A section of this policy mandates that certain activities take place at the

county level to aid children in transitioning out of pre-K and into kindergarten As part of this policy pre-K students and their families must have the opportunity to visit their prospective kindergarten setting and counties are required to provide written information to parents about the kindergarten registration process Additionally county collaborative teams are required to provide an opportunity for pre-K providers to meet on an annual basis with kindergarten teachers to discuss how to best prepare students to be successful in their transition County collaborative teams also must establish a system for transferring assessment documentation as a part of each childrsquos transition report which goes to the childrsquos future kindergarten teacher

KINDERGARTEN THROUGH THIRD GRADEDevelopmentally the early elementary years are when children best acquire the academic and non-academic skills on which long-lasting educational success depends A studentrsquos ability to meet grade-level expectations by the end of third grade plays a significant role in the likelihood of them graduating from high school

Why it mattersOf the 25 million students who dropped out of high school last year approximately 16 million were firmly set on that trajectory when they were 8 years old11 These are the students who were not proficient in reading and received the lowest reading scores on the third-grade literacy exam Following a high-quality pre-K experience the K-3 years set the foundation upon which future learning builds and it must be emphasized that strengthening these years creates opportunities for all Properly addressing the overwhelming importance of early elementary education requires a well-crafted comprehensive plan that addresses the learning continuum throughout early childhood providing students with the fundamental skills they need to succeed later Equity in these early years is critical and means that well-prepared teachers and leaders provide instruction in a developmentally appropriate environment with resources and services sufficient to meet the needs of all the nationrsquos youngest learners in all settings

Statewide initiativesThere are 13588 school districts across the country and approximately 90000 elementary schools and many are making K-3 a priority In the past four years more than half of the states passed legislation geared toward improving third-grade reading proficiency Additionally 13 states require that kindergarten teachers have an early childhood education license and four states require elementary school principals to have preparation in early language and literacy development While these are essential steps toward improving K-3 quality they are also just that first steps in a long line of work that can be done to ensure that the foundational years of public schooling set students on a path to becoming lifelong learners who experience academic and social success

Questions to consider J Does the state employ K-3 strategies for school improvement

J Has a policy audit been completed to identify opportunities for improving the quality of the state K-3 system

J Are there specific licensing requirements certifications and endorsements in place for K-3 teachers that address developmentally appropriate practices

J Are there requirements that school leader and principal preparation includes training in early childhood education and child development (such as embedded practical experiences and culturally relevant trainings)

J Does the state education agency have a dedicated office focused on K-3 quality improvements and supports including coordination with early learning providers and fourth-to-12thndashgrade programs

Resources J K-3 Policymakersrsquo Guide to

Action Making the early years count Education Commission of the States

J 2013 Legislative Session P-3 Policies Education Commission of the States

State examples Coloradorsquos SB 103 (2017) updates school improvement and turnaround plans to include early learning strategies as part of the department of educationrsquos technical assistance to these schools This requires schools under these plans to perform a needs assessment of their early childhood landscape in addition to a general needs assessment

Rhode Islandrsquos governor released a plan to use school readiness school success safety net services and community engagement to help 75 percent of third-graders read proficiently by 202512

FULL-DAY KINDERGARTEN This refers to the accessibility affordability and length of full-day kindergarten Thirteen states plus the District of Columbia require that districts offer full-day kindergarten programs yet tuition and length of day varies

Why it mattersAs states look to strengthen their investments and quality in early learning full-day kindergarten is a key component in creating a seamless early learning continuum In 28 states the length of full-day kindergarten is equal to that of first grade whereas in some states program length is shorter13 Expanding full-day kindergarten increases the opportunity to develop the foundational skills necessary to set up students for early academic success and to be proficient readers by third grade

Research indicates that students in full-day kindergarten make stronger academic gains in reading and math over the course of the kindergarten year than students in half-day kindergarten programs Additionally more time in the classroom gives children the opportunity to have a greater number of early learning experiences and child-teacher interactions that help prepare them for their academic and developmental growth Thus some states are looking to improve the quality of full-day kindergarten to support the gains made in the pre-K space setting students up for success throughout their formal education When considering kindergarten components states are examining such issues as student-to-teacher ratios kindergarten entrance assessments and compulsory kindergarten attendance

Statewide initiativesThere is a great deal of disparity both within and across states on full-day kindergarten policies For example in states that only require half-day kindergarten some districts fund full-day kindergarten through parent fees fundraising and redistribution of the districtrsquos per-pupil revenue mdash giving some students access that others do not have Other districts cannot based on state policy creating potential inequities14

Questions to consider J What percentage of kindergarten students attend full-day programs

J What is the length of day for kindergarten programs

J Is there a ban on charging tuition to parents

J Does your state have student-to-teacher ratios for kindergarten and do they differ from other elementary grades

Resources J Inequalities at the Starting

Line State Kindergarten Policies Education Commission of the States

J 50-State Review on Full Day Kindergarten A look across the states Education Commission of the States

J 50-State Comparison on K-3 Quality Kindergarten Education Commission of the States

State examplesNebraska offers permissive half-day kindergarten Districts must offer half-day kindergarten options and they receive half of the per-pupil funding for these students however they can also choose to offer full-day

kindergarten and receive funding at the same level as other students first through 12th grade which financially incentivizes districts to do so15

Rhode Islandrsquos SB 2022 (2016) changed its compulsory school age from 6 to 5 years old making kindergarten attendance mandatory16

THIRD-GRADE READING AND MATHWhile third-grade retention policies are one reactive option for achieving third-grade proficiency many states are now looking at structures and supports to put in place before a child is retained in third grade Additionally as states address early literacy research indicates that math is equally as important as literacy skills in a childrsquos P-3 experience Additionally research shows that doing more math increases oral language abilities mdash including vocabulary inference independence and grammatical complexity mdash even when measured during the following school year Given the importance of math to academic success in all subjects all children need to develop robust knowledge in the earliest years17

Why it mattersResearch shows that children who are not proficient readers at the end of third grade are four times more likely to drop out of high school18 Yet nationally 2 in 3 fourth-graders are not proficient in reading according to the most recent data available19 To tackle this problem states have responded by implementing retention policies that hold students in the third grade until they are proficient But this can be costly and negatively affect a studentrsquos long-term academic success

Many policymakers are now examining more preventative approaches to supporting students in becoming proficient readers including early interventions and professional development opportunities for teachers Some of these intervention systems include summer reading courses reading intervention plans additional direct reading instruction and coordination with a studentrsquos family

States have also increased the value placed on proficient math skills as another key indicator of later academic success In doing so strategies and policies utilized to strengthen third grade reading proficiency are being implemented to bolster math achievement in the early elementary years

Questions to consider J What intervention systems are in place to support the early

elementary years

J Is third-grade retention required

J Is math equally supported in the early elementary years and through professional development or teacher preparation programs

Resources J Early Warning Why Reading

by the End of Third Grade Matters Annie E Casey Foundation

J Math in the Early Years A Strong Predictor for Later School Success Education Commission of the States

J Unlocking Young Childrenrsquos Potential Governorsrsquo Role in Strengthening Early Mathematics Learning National Governors Association

Statewide initiativesThirty-nine states plus the District of Columbia require assessments in any or all K-3 grades and 36 states provide guidance around what those assessment results should inform Forty states plus the District of Columbia provide guidance around a system of interventions for struggling students These supports help to address third-grade proficiency before reactive measures are implemented Sixteen states plus the District of Columbia require third-grade retention and 14 of those offer conditional promotion options All states that require retention also require a system of intervention20

State examplesArizonarsquos HB 2190 (2016) revises the statersquos third-grade reading retention program and allows third-grade students mdash who are reading below grade level and receive intervention and remedial services during the summer mdash to be promoted from third grade

Iowarsquos HF 2413 (2016) requires intensive reading instruction provided by the school district for K-3 students who are not reading proficiently and are persistently at risk in reading Additionally it requires that these

students are reassessed for reading proficiency using locally determined or statewide assessments mdash including periodic universal screening and annual standards-based assessments mdash before the child is retained in third grade

Texasrsquo SB 934 (2015) directs the commissioner of education to develop mathematics achievement academies for teachers who provide math instruction to K-3 students

In Mississippi interventions include supplemental instruction K-3 transition classes family engagement with home reading strategies

summer programs and extended dayyear programs Students who are retained in third grade must be provided supplemental instruction progress monitoring high-performing teachers and family engagement through home reading strategies

HIGH-QUALITY PROGRAMS Programs found to be effective in promoting positive outcomes for young children share several characteristics including

J Highly-skilled educators

J Small class sizes and high adult-to-child ratios

J Age-appropriate curricula and stimulating materials in a safe environment

J An environment that is rich with language books print materials and conversation between children and adults

J Respectful interactions between teachers and children

J High and consistent attendance rates

High-quality programs are also characterized by teachers who use observation and assessment data to inform curricula and planning and leaders that not only provide administrative support but also serve as strong instructional guides

Why it mattersChildren who have access to high-quality P-3 educational experiences demonstrate better academic outcomes and fewer behavioral problems than children who do not High-quality programs can reduce grade-level retention and special education placement while increasing achievement and pro-social behavior For low-income children participation in high-quality programming has been found to mitigate early disparities in learning Though access to preschool programs for 3- and 4-year-olds has increased significantly over the last decade the benefits of these programs (that is achieving success in third grade) are not likely to be realized if the programs do not meet critical benchmarks of quality

Statewide initiativesEfforts to define and measure quality in P-3 settings generally fall into two categories Systems that evaluate K-3 teacher quality and systems that evaluate early childhood (birth to age five) program quality More than 40 states use teacher evaluation systems to examine the quality and effectiveness of teachers in the K-12 system

Teacher evaluation systems typically include measures of student achievement and observations of teacher practice However a national dialogue has emerged around the validity of these evaluation systems in the early grades since summative assessment data (that also narrowly focus on literacy and math) are not appropriate or effective measures

Questions to consider J Does the state have a teacher evaluation system that includes

performance evaluations for K-3 teachers

J Does the state have a QRIS to assess the quality of programs for children from birth to age five

J What percentage of programs serving children up to age five participate in the QRIS

J What are the strengths and weaknesses of the support systems in place (for example professional development systems the availability of P-3 degree and credential programs in institutions of higher education and ongoing training or coaching for professionals already in the field) to promote program and classroom quality

Resources J How Are Early Childhood

Teachers Faring in State Teacher Evaluation Systems Center on Enhancing Early Learning Outcomes

J Leading for Early Success Building School Principalsrsquo Capacity to Lead High-Quality Early Education National Governors Association

J Framework for Planning Implementing and Evaluating PreK-3rd Grade Approaches National P-3 Center

of young childrenrsquos growth and learning Instead some states are beginning to explore the use of metrics that directly evaluate the quality of early-grade teachers such as the Classroom Assessment Scoring System (CLASS) and weigh those results more heavily in teacher evaluation systems than student outcome data

To evaluate the quality of early childhood and school-aged settings (that is beforeafter school) more than 40 states developed or are piloting a Quality Rating and Improvement System Similar to star ratings used for restaurants and other services a QRIS designates a quality rating based on criteria determined by the state These criteria typically include measures of staff qualifications training and professional development ratiosgroup size the quality of the learning environment and parentfamily involvement

State examplesIn 2010 Illinois passed legislation to better prepare principals in their roles as both instructional leaders and leaders of schools that include preschool programs Specifically the law requires that principals obtain a new P-12 license replacing the previous K-12 license The law also requires institutions of higher education to be re-

accredited to demonstrate that their principal licensure programs include curricula that will build the capacity of instructional leaders and include deeper coverage of early childhood development content

At least five states (Colorado Massachusetts New Jersey Pennsylvania and Rhode Island) include CLASS as an approved measure districts can use as part of their teacher evaluation systems

ALIGNED STANDARDS CURRICULA AND ASSESSMENTS Learning standards define what children should know or be able to do in each grade or stage of development in areas such as language reading math science health and physical education Curricula articulate an educational approach for teaching and provide a framework for designing lessons and activities through interactions with materials peers and adults Assessments that are appropriate for young children primarily rely on teacher observation instead of direct performance In addition though the purpose of the assessment best dictates how the data are used early-grade assessment data are typically used in a formative way to guide instruction

Why it mattersWhen children engage in a coherent set of high-quality P-3 learning experiences the ldquofade outrdquo effect (the notion that early gains in learning disappear later in school) is greatly diminished21 Aligning standards curricula and assessments ensures that young children engage in the right sequence of learning experiences at the right time Alignment also ensures children are working toward building the set of skills and knowledge they will need as they move from a high-quality preschool to a high-quality full-day kindergarten and the early elementary grades

Statewide initiativesStates are working to address alignment from two perspectives Horizontal alignment works to ensure alignment of the standards curricula and assessment approaches used within a grade level and vertical alignment works to ensure that standards curricula and assessments are sequential as children move from grade to grade22 Though nearly all states have early learning standards for children up to age five not all states have aligned these to their K-12 standards Systemic and aligned infrastructure is significant for states and needs to maintain efficiency accountability and be established with a vision and authority to accomplish short- and long-term outcomes for children in the P-3 continuum Because of multiple governance structures within states few have accomplished this alignment

Questions to consider J Are learning standards aligned for children up to age eight

J Do P-3 learning standards cover the areas of learning and development that are critical for school success language and literacy math cognition physical development socio-emotional development and approaches to learning (for example persistence and curiosity)

J Are preschool assessments aligned with kindergarten entrance assessments and third-grade testing

J Do districts or does the state have a dedicated office to support P-3 leadership and innovation to align standards curricula and instruction as well as adoption of teacher and leader competencies

Resources J Building and Supporting an

Aligned System A Vision for Transforming Education Across the Pre-K-Grade Three Years National Association of Elementary School Principals

J Ladders of Learning Fighting Fade-Out by Advancing PK-3 Alignment New America

State examples Pennsylvania developed a comprehensive set of aligned P-3 learning standards curricula and assessments To support local choice Pennsylvania provides a detailed list of approved curricula that align to the early learning standards and materials to help local programs and entities choose appropriate assessment instruments

In 2015 Vermont revised its standards up to third grade to create an aligned set of goals for the early learning continuum The goals include three components developing self communication and expression and learning about the world To support these components age and developmentally appropriate milestones are included as the standards are described

FUNDINGDeveloping an efficient financing strategy can be challenging because no single state or federal funding stream covers the full range of programs and services for children from birth to third grade To further complicate the picture most of the funding for children up to age five comes from many different sources while funding for K-3 education comes primarily from state and local funds As a result it takes policymakers who are savvy about blending (combining) and braiding (coordinating) funds to maximize revenue minimize inefficiencies reduce duplication and ultimately reach more children

Why it mattersThe landscape of P-3 funding varies from state to state and is scattered between various levels of government state agencies and programs within a state Obtaining the complete picture of how students are funded involves an in-depth analysis across many different pieces of the funding puzzle However complicated funding systems might be it is imperative that policymakers ensure that students have access to consistently funded high-quality programs Funding streams that are subject to shifting political wills or tumultuous economic cycles result in inconsistent and inefficient funding but with planning and foresight policymakers can develop sound financing strategies

Statewide initiatives and state examplesUnder current policy most states have a separate funding system for pre-K than for K-3 which can include dedicated revenue streams In Maine Oklahoma and West Virginia funding for pre-K is allocated in the same way that it is allocated for the K-12 system including having the same base per-pupil amount

Questions to consider J What are the most significant and sustainable sources of P-3 funds

J Is there a gap or drop-off in funding between pre-K and kindergarten

J How could the state blend funding streams together to ensure a smooth transition for students

J Are policymakers aware of the various sources and funding streams for P-3 education If not could resources be dedicated to a landscape analysis to evaluate the current policy situation for P-3 funding

Resources J 50-State Review of State

Pre-K Funding 2016-17 Fiscal Year Trends and opportunities Education Commission of the States

J Blending and Braiding Early Childhood Program Funding Streams Toolkit The Ounce of Prevention

Pre-K Funding

There are three distinct buckets for how states fund pre-K

J Through the K-12 funding formula

J By program J No state-funded program

In 2016-17 six states (Idaho Montana New Hampshire North Dakota South Dakota and Wyoming) did not provide funding for pre-K23 In contrast nine states plus the District of Columbia include pre-K programs in their education funding formulas24 The majority of states however provide funding for specific pre-K programs For example Minnesota funds three separate pre-K programs (School Readiness Program Head Start Supplemental and Early Learning Scholarships) In addition some states have passed statewide ballot initiatives to fund pre-K some have utilized tobacco settlement dollars and others have passed local taxing districts

K-3 Funding

All 50 states and the District of Columbia fund kindergarten first second and third grade through the same funding mechanism commonly called a school funding formula This dedicated funding stream is generally based on the number of students enrolled in a district with additional weights applied for certain demographic criteria (English-language learners small districts etc) K-3 funding is generally a blend of state and local revenue sources and the funding levels vary from state to state mdash and even from district to district within a state Some states provide districts with funding for full-day kindergarten while others rely on local funds tuition or might not offer full-day kindergarten at all

GOVERNANCEEducation governance is a strategy for coordinating multiple institutions at various levels of state and local government to deliver education to students Governance helps address issues by providing structure in the form of authority and accountability to entities charged with providing programs services and a coherent strategy for achieving goals25

Although K-12 education has centralized most of the governing functions in state departments of education the American school system is unique in its fragmented approach to education governance as it ambiguously divides key administrative functions between state government and local school districts Early childhood programs and services are administered by multiple state agencies that handle programs relating to mental health education (Head StartEarly Head Start child care early intervention pre-K K-3 etc) and social services (Temporary Assistance for Needy Families foster care home visits family resource centers and parenting education) mdash in addition to local school districts that in many cases directly administer early childhood programs The complexity of P-3 administration creates numerous challenges for state and local officials mdash including an array of intergovernmental cooperation issues like fragmentation challenges and quality monitoring as well as ongoing political volatility mdash which makes policy alignment difficult

Why it mattersBecause of the fragmentation between early learning and K-12 it is necessary for state leaders to designate a strategy or structure for coordinating P-3 programs and funding To ensure effectiveness P-3 governance needs to maintain efficiency and be established with vision and authority to accomplish short- and long-term outcomes It is also important to note that coordinated governance does not mean all programs and services need to be co-located under the same roof but rather the governance entity should have the authority needed to make decisions across multiple entities

States need coordinating bodies to ensure various state agencies and local governance are harmonized in their work This is especially true in cases where responsibilities are distributed to multiple entities at different levels of government Convoluted administrative structures create natural limits to addressing policy issues in an efficient manner and require clear institutional connections to facilitate cooperation26 It is important for states to demonstrate leadership by developing a coherent strategy and vision for early childhood education and working to align the mandates and goals guiding state agency action to enable effective intergovernmental cooperation that ensures the delivery of high-quality early childhood education and services

Questions to consider

J Are there entities that are duplicating services that could be consolidated

J Have leaders or authoritative institutions on P-3 issues been clearly identified and are there defined duties and responsibilities assigned to those leaders and institutions

J Are agenciesrsquo mandates and authority aligned to provide an environment for effective intergovernmental cooperation

J What structures are in place to monitor program quality and share data across relevant agencies

Resources J A Framework for Choosing

a State-Level Early Childhood Governance System Build Initiative

J State Advisory Councils US Department of Health and Human Services

Statewide initiativesStates have experimented with the best ways to coordinate early childhood activities across state and local government entities and several states have made progress on key areas relating to P-3 governance improvement In general states have two governance strategies for early childhood education early childhood advisory councils and state-level coordinating structures

Early childhood advisory councils were created through federal grant incentives in 2009 to develop a high-quality comprehensive system of early childhood development and care27 Since the funds were made available 45 states have utilized them to create State Advisory Councils on Early Childhood Education and Care that coordinate and promote early childhood programs SACs seek to build infrastructure for high-quality programs identify areas for collaboration and develop data-gathering and quality-measuring procedures Additionally SACs provide the framework to develop permanent early childhood governance structures A number of states including Maryland Massachusetts and New York passed legislation making their SACs permanent while others have put the SACs into statute with a sunset date (when the statute will expire if not renewed)

State examples Research shows that as of 2013 35 states included public pre-K oversight in the same governance structure that oversees K-12 systems28 Several states have passed legislation clarifying early childhood education authority and consolidating governance functions For example Connecticut created an office of early childhood and Oregon established an early learning division within its state department of education Colorado has similarly consolidated and aligned early childhood programs within its state department of human services and created the office of early childhood

At least one state has begun to address early childhood issues by using a consolidated governance structure that comprehensively addresses multiple aspects of early childhood Washington passed HB 1661 during the 2017 legislative session creating the department of children youth and families and beginning a yearlong transition to consolidate several services previously overseen by the state department of social and health services and the department of early learning

WORKFORCEIt is critical that early childhood educators secure the competencies necessary to develop strong relationships with their students to provide lessons and experiences that support their development and learning and to equitably serve children from diverse backgrounds As research supports the importance of quality early elementary years for students both socially and emotionally policymakers are turning more attention toward supporting teacher and leader workforce development Since principals coach and evaluate elementary teachers it is key that they understand developmentally appropriate practices and curricula needed in the early years Currently four states require that elementary school principals have preparation in early language and literacy development demonstrating a gap in the preparation and ongoing professional development of the early learning workforce29

Why it mattersHigh-quality early childhood programs advance young childrenrsquos early development helping to build a range of critical skills necessary for success in school and beyond Elementary school principals and teachers have the unique opportunity to continue to set the foundation on which later academic success is dependent To do so it is important to have a solid understanding of academic mdash as well as cognitive and developmental mdash milestones necessary during each grade and for states to ensure that licensing structures align with developmental science Thirty-eight states require some form of teacher preparation or professional development in reading for K-3 educators30 Many of these requirements include training on reading instruction using reading assessment results and providing interventions

Statewide initiativesStates sometimes look at encouraging professional development opportunities between early childhood educators and early elementary teachers recognizing that funding and school structures often alienate the two groups from providing a seamless early learning experience for students Additionally there are issues of broader licensing to create a more flexible workforce and adequate preparation for teaching to the developmentally appropriate needs of the agegrade

Questions to consider J Do early learning teachers and K-12 teachers receive professional

development sessions together

J What licensing structures exist for both teachers and principals to receive training in developmentally appropriate practices early literacy and math instruction

J Is there an early childhood license offered mdash pre-K-3 or some variation

J One Size Doesnrsquot Fit All The Need for Specialized Teacher Licenses in the Early Grades New America

J Workforce of Today Workforce of Tomorrow The Business Case for High-Quality Childcare US Chamber of Commerce Foundation

State examplesTo build a stronger pre-K workforce that understands the needs of early learners Pennsylvania created a PK-4 grade license and a (grade) 4-8 license State policies also allow holders of either the PK-4 or the 4-8 licenses to take a test for dual certification

South Carolina is the only state with a (grade) 2-6 license Teachers interested in teaching in the early elementary years earn a PK-3 license and if interested in the later elementary grades a 2-6 license

DUAL-LANGUAGE LEARNERS Language acquisition begins in infancy and is one of the most important developmental accomplishments in early childhood Defined in the broadest sense children who are dual-language learners are those who are learning two (or more) languages at the same time or learning a second language while continuing to develop their first language These students come from homes where a language other than English is spoken As many as 22 percent of children ages 5-17 in the United States speak a language other than English at home and their academic achievement typically lags behind that of their monolingual English-speaking peers While these young learners stand to benefit disproportionately from high-quality early childhood programs they are less likely than their peers to be enrolled in such programs Given the growing number of dual-language learners ensuring they are prepared for school and do well once they enter is an economic imperative that will directly impact their potential for later success and our nationrsquos future workforce

Why it mattersThe US Census Bureau projects the number of dual-language learners will continue to rise in the coming decades And estimates suggest that the number may be even higher for children under age 5 as nearly 1 in 3 Head Start participants speaks another language On average children who are dual-language learners and come from families of low socioeconomic status enter kindergarten behind their peers in language literacy and math and they experience a higher dropout rate The good news is that dual-language learners who are proficient in English by the end of kindergarten do better academically over time

There are many federal laws that apply to serving dual-language learners and their families and most reflect important underlying principles of equal opportunity for all children mdash including the Head Start Act Child Care and Development Block Grant Individuals with Disabilities Education Act Title VI of the Civil Rights Act and its implementing regulations Equal Educational Opportunities Act Native American Languages Act and Every Student Succeeds Act (requiring that states test annually in English language arts in grades 3-8)

Questions to consider J Is there a systematic process at program enrollment for identifying

children who are dual-language learners

J Is information provided to families in their primary language

J Is professional development for staff in culturally and linguistically responsive practice required

Resources J Dual Language Learners

A National Demographic and Policy Profile Migration Policy Institute

J Educating Young Dual- and English-Language Learners National Conference of State Legislatures

J Policy Statement on Supporting the Development of Children Who Are Dual Language Learners in Early Childhood Programs US Department of Health and Human Services and US Department of Education

Statewide initiativesThere is variability in how states track their English-language and academic progress because of differences in assessments cut scores and data reporting This leads to a lack of clarity on how these students perform over time and across state lines Some states and communities have made significant strides while others are lagging in their efforts to support the development of dual-language learners Currently 15 states require public preschool programs to screen dual-language students Some states created pilot programs task forces or committees to study best practices others crafted legislation intended to increase funding for the support of dual-language learners and others aligned teacher preparation standards to match this growing population

State examplesVirginiarsquos HB 241 (2016) requires the board of education to consider assessments aligned to state standards that are specific to students who are English-language learners as alternatives to state end-of-course English reading assessments

Coloradorsquos HB 1160 (2017) specifies that a K-3 student who is identified as an English-language learner can take reading assessments in English or an approved assessment in their native language The school district or charter school must determine the studentrsquos level of English proficiency and communicate this to the studentrsquos parent

SPECIAL EDUCATION As states work to strengthen their early learning continuum it is important they also consider supports for young students with disabilities In 2014-15 66 million students mdash or 13 percent of all public school students ages 3-21 mdash received special education services31 Support services for many of these students begin prior to entering kindergarten through early diagnostics and interventions and typically continue throughout the duration of the school year They are imperative for supporting special education students with their academic social and emotional needs In best practice a quality early learning continuum supports all students in the early childhood years and beyond

Why it mattersThe Individuals with Disabilities Education Act ensures states offer appropriate education services to students with disabilities and requires the federal government to provide some funding to support states in this work Though federal IDEA standards remain high much of the funding comes from state and local governments32

Each year states must submit IDEA compliance reports indicating (1) the percentage of infants toddlers and preschool children with disabilities receiving early intervention or early childhood programming and (2) the percentage demonstrating improved social-emotional and intellectual functioning These required evaluations may help states identify gaps in the services provided to their youngest students with disabilities and consider how other systems align and support special education students before academic gaps begin33

For example QRIS can be strengthened to clearly identify programs with strong inclusionary practices At the same time professional development can help bolster the instructional strategies and supports for all students such as the inclusion of special education students into general education environments when appropriate

States have the unique opportunity to further support and often mitigate students qualifying for special education services in the early years Purposeful interventions smaller class sizes increased focus on social-emotional learning and additional supports help to build off of the federal supports for students with disabilities and narrow the achievement gap between special education students and their general education peers With transitions out of special education decreasing greatly after the third grade the early childhood years are key34

Questions to consider J What teaching models (for example co-teaching push-in pull-out

etc) exist to best support special education students

J How can intervention systems in place for all elementary students also support special education students

J Are there supports in place for suspension and expulsions in the early years Do these supports consider students with disabilities

J How are QRIS and other early learning data systems incorporated with K-12 data

J What state funding mechanisms support special education students

Resources J 50-State Comparison

State funding for students with disabilities Education Commission of the States

J QRIS and Inclusion Do state QRIS standards support the learning needs of all children Center on Enhancing Early Learning Outcomes

Statewide initiatives Floridarsquos HB 7053 (2016) directs the department of health to develop and implement a comprehensive information clearinghouse to educate health care providers inform parents and increase public awareness on

brain development developmental disabilities and delays and all available early intervention services and resources It also directs the clearinghouse to provide several specified services

Connecticutrsquos HB 7254 (2017) establishes additional requirements for applicants seeking a comprehensive special education or integrated early childhood and special education endorsement whether they are already

certified or applying to be certified as teachers It also requires them to complete a reading and language diagnosis and remediation program that includes supervised practicum hours and instruction in the detection of and evidence-based structured literacy interventions for dyslexic students

ENDNOTES

1 Donald Hernandez Double Jeopardy How Third-grade Reading Skills and Poverty Influence High School Graduation (Baltimore Annie E Casey Foundation 2001) 74 httpwwwaecforgmresourcedocAECF-DoubleJeopardy-2012-Fullpdf

2 Tamara Halle et al Disparities in Early Learning and Development Lessons from the Early Childhood Longitudinal Study mdash Birth Cohort Executive Summary (Washington DC Child Trends 2009) httpwwwchildtrendsorgwp-contentuploads2013052009-52DisparitiesELExecSummpdf

3 Jorge Luis Garcia et al ldquoThe Life-cycle Benefits of an Influential Early Childhood Programrdquo (working paper No 22993 National Bureau of Economic Research December 2016) httpwwwnberorgpapersw22993

4 Donna Cooper and Kristina Costa Increasing the Effectiveness and Efficiency of Existing Public Investments in Early Childhood Education Recommendations to Boost Program Outcomes and Efficiency (Washington DC Center for American Progress 2012) httpcdnamericanprogressorgwp-contentuploadsissues201206pdfearlychildhoodpdf

5 W Barnett et al The State of Preschool 2016 Yearbook (New Brunswick National Institute for Early Education Research 2017) httpnieerorgwp-contentuploads201709Full_State_of_Preschool_2016_91517_compressedpdf

6 Ibid p 57

7 Ibid p 117

8 Ellen S Peisner-Feinberg et al Effects of Georgiarsquos Pre-K Program on Childrenrsquos School Readiness Skills Findings from the 2012-2013 Evaluation Study (Chapel

Hill The University of North Carolina at Chapel Hill 2014) httpfpguncedusitesfpguncedufilesresourcesreports-and-policy-briefsGAPreKEval_RDDReport203-4-2014pdf

9 Mimi Howard Transition and Alignment Two Keys to Assuring Student Success (Denver Education Commission of the States 2010) httpswwwecsorgclearinghouse84078407pdf

10 Alyssa Rafa 50-State Comparison K-3 Quality (Denver Education Commission of the States 2016) httpswwwecsorg50-state-comparison-k-3-quality

11 ldquoPopulation 16 to 24 years old and number of 16- to 24-year-old high school dropouts (status dropouts) by sex and raceethnicity 1970 through 2014rdquo National Center for Education Statistics August 2015 httpsncesedgovprogramsdigestd15tablesdt15_21971aspcurrent=yes and Donald Hernandez Double Jeopardy How Third-grade Reading Skills and Poverty Influence High School Graduation (Baltimore Annie E Casey Foundation 2001) httpwwwaecforgmresourcedocAECF-DoubleJeopardy-2012-Fullpdf

12 ldquoRhode Islands Third Grade Reading Action Planrdquo Rhode Islandrsquos Childrenrsquos Cabinet last updated October 27 2017 httpwwwkidsrigovdocumentsThird20Grade20Action20Plan_171030_CCpdf

13 Bruce Atchison Louisa Diffey and Emily Parker Full-Day Kindergarten A look across the states (Denver Education Commission of the States 2016) httpswwwecsorgfull-day-kindergarten-a-look-across-the-states

14 Ibid

15 Ibid

16 Louisa Diffey and Sarah Steffes Age Requirements for Free and Compulsory Education (Denver Education Commission of the States 2017) httpswwwecsorgec-contentuploadsAge_Requirements_for_Free_and_Compulsory_Education-1pdf

17 Doug Clements and Julie Sarama Math in the Early Years A strong predictor for later school success (Denver Education Commission of the States 2013) httpswwwecsorgclearinghouse01094610946pdf

18 Donald Hernandez Double Jeopardy How Third-grade Reading Skills and Poverty Influence High School Graduation (Baltimore Annie E Casey Foundation 2001) httpwwwaecforgmresourcedocAECF-DoubleJeopardy-2012-Fullpdf

19 Fourth grade reaching achievement levels Kids Count Data Center last updated November 2015 httpdatacenterkidscountorgdatatables5116-fourth-grade-reading-achievement-leve l s loc=1amp loct=2deta i l ed22-52fa lse573368673818118511861187118811560

21 Kimber Bogard and Ruby Takanishi ldquoPK-3 An Aligned and Coordinated Approach to Education for Children 3 to 8 Years Old Society for Research in Child Developmentrdquo Social Policy Report 19 no 3 (2005) 3-9 httpwwwicpsrumichedufilesPREK3RDresourcespdfPK-3AnAlignedandCoordinatedApproachpdf

22 Kristie Kauerz Ladders of Learning Fighting Fadeout by Advancing Pk-3 Alignment (Washington DC New America Foundation Early Education Initiative 2006) 117 httpsna-productions3amazonawscomdocumentsladders-of-learning

23 Louisa Diffey Emily Parker and Bruce Atchison State Pre-K Funding 2016-17 Fiscal Year Trends and opportunities (Denver Education Commission of the States 2017) httpswwwecsorgec-contentuploadsState-Pre-K-Funding-2016-17-Fiscal-Year-Trends-and-opportunities-1pdf

24 W Steven Barnett and Richard Kasmin Funding Landscape for Preschool with a Highly Qualified Workforce (Washington DC The National Academies of Sciences Engineering and Medicine December 2016) http sitesnationalacademiesorgcsgroupsdbassesitedocuments webpagedbasse_175816pdf

25 Elliot Regenstein and Katherine Lipper A Framework for Choosing A State-Level Early Childhood Governance System (Boston Build Initiative 2013) httpwwwbuildinitiativeorgPortals0UploadsDocumentsEarly20Childhood20Governance20for20Webpdf

26 Peter J May Ashley E Jochim and Barry Pump ldquoPolitical Limits to the Processing of Policy Problemsrdquo Politics and Governance 1 no 2 (July 2013) httpswwwcogitatiopresscompoliticsandgovernancearticleview9876

27 ldquoState Advisory Councilsrdquo US Department of Health and Human Services (last modified July 6 2017) httpswwwacfhhsgovecdearly-learningstate-advisory-councils

our information with others To request permission to reprint or excerpt some of our material please contact us at 3032993609 or email

askinnerecsorg

Education Commission of the Statesemsp|emsp700 Broadway Suite 810 Denver CO 80203

AUTHORBruce Atchison is the director of early learning with Education Commission of the States If you canrsquot find Bruce at the office you might look to the nearest Rocky Mountain stream where he is likely casting a fly for the big one Contact Bruce at batchisonecsorg or 3032993657

Louisa Diffey is a policy researcher with Education Commission of the States Outside of the office Louisa can be found exploring Coloradorsquos camping and skiing options Contact Louisa at ldiffeyecsorg or 3032993655

With contributions from Stephanie Aragon Nicki Holly Emily Parker and Hunter Railey

29 From Crawling to Walking New America accessed November 14 2017 httpatlasnewamericaorgcrawling-to-walking

31 ldquoChildren and Youth with Disabilitiesrdquo National Center for Education Statistics last modified May 2017 httpsncesedgovprogramscoeindicator_cggasp

32 Michael Griffith A Look at Funding for Students with Disabilities (Denver Education Commission of the States March 2015) httpswwwecsorgclearinghouse01177211772pdf

33 ldquoMemorandum Part C State Performance Plan (Part C ndash SPP) and Part C Annual Performance Report (Part C ndash APR)rdquo United States Department of Education Office of Special Education and Rehabilitative Services Dec 23 2014 httpswww2edgovpolicyspecedguidideacapr20152015sppaprmemo122314pdf

34 Kaycie Gillette-Mallard ldquoHow Early Education Can Reduce Special Education Placementsrdquo Ed Central (blog) New America July 17 2015 httpswwwnewamericaorgeducation-policyedcentralreducing-special-education-placements-through-early-education

_Hlk498515775